This initiative from the French Presidency is based on general
grounds set out in Article 63.3.3. of the Amsterdam Treaty on
combating illegal immigration and illegal residence. This proposal
suggests that a third-country national, including those with
residence permits, can be expelled from the EU on several grounds
covering public policy and national security. These grounds include
a prison sentence of just one year or more, being suspected of
having committed and preparing to commit a serious criminal offence
based on "serious grounds for believing" and "clear
evidence of an intention."

FULL TEXT

EUROPEAN UNION

THE COUNCIL

Brussels, 30 June 2000

9896/00

LIMITE

MIGR 51

NOTE

from: incoming French Presidency

to: Working Party on Migration and Expulsion

Subject: Draft initiative by the French Republic for the
adoption of a Council Directive on mutual recognition of decisions
concerning expulsion of third-country nationals

Delegationswill find attached the above draft initiative.

________________________

EXPLANATORY MEMORANDUM

1. GENERAL PRESENTATION

1.1. Since the entry into force of the Treaty of Amsterdam,
asylum and immigration matters come within the Community's sphere
of responsibility under the new Title IV of the amended
Treaty establishing the European Community (TEC). Article 63
of the TEC specifies the measures which the Council is to adopt
in the asylum and immigration field within five years after the
entry into force of the Treaty of Amsterdam. The Council is thus
called upon to adopt measures on conditions of entry and residence
and on illegal immigration and illegal residence.

1.2. Meeting in Tampere on 15 and 16 October 1999,
the European Council expressed its determination to develop the
European Union as an area of freedom, security and justice by
making full use of the possibilities offered by the Treaty of
Amsterdam and agreed on a number of policy guidelines and priorities
which will speedily make this area a reality. The Council accordingly
reaffirmed the objective of establishing a common policy on asylum
and migration.

That objective means that, given a policy designed to ensure
fair treatment of lawfully present third-country nationals, European
Union territory cannot become a sanctuary for those against whom
an expulsion order has been issued by a Member State.

1.3. The purpose of the proposed Directive is to assist in
more effective enforcement of expulsion orders by establishing
a system of mutual recognition of expulsion decisions by Member
States. The aim is that, where such an order has been issued
by one Member State, another Member State should automatically
be able to enforce it.

1.4. The inclusion in the Treaty establishing the European
Community of the new Title IV on visas, asylum, immigration
and other policies related to free movement of persons establishes
Community powers in those areas. However, such powers have to
be exercised in accordance with Article 5 of the EC Treaty,
i.e. if and insofar as the objectives of the proposed action
cannot be sufficiently achieved by the Member States and can
therefore, by reason of the scale or effects of the proposed
action, be better achieved by the Community. The proposed Directive
fulfils those criteria.

1.5. The establishment of an area of freedom, security and
justice involves the adoption of common immigration policy rules.
The specific aim of this initiative is to make it possible for
one Member State to enforce an expulsion order issued by another
Member State.

1.6. The form of Community action should be as simple as possible,
while enabling the objective of the initiative to be achieved
and its implementation facilitated. With that in mind, the legal
instrument chosen is a Directive, which serves to lay down broad
principles, while leaving to the Member States to which it is
addressed the choice of the form and methods best suited to implementing
those principles under their own legal system and in their domestic
setting. The proposed Directive leaves it to Member States to
carry out expulsion as provided in their own legislation.

2. PRESENTATION OF THE ARTICLES

Article 1

Article 1 lays down the purpose of the Directive, which
is to make possible the automatic enforcement by one Member State
of an expulsion order issued by an administrative authority in
another Member State.

Article 2

This article lays down the category of persons covered, i.e.
anyone above the age of majority who is not a national of any
of the Member States of the Union.

Article 3

This article spells out the two possible cases of expulsion:

(c) expulsion based on a threat to public policy. The first
subparagraph requires the order to be enforceable, based on a
serious present threat and issued in accordance with the European
Convention on Human Rights;

(d) expulsion based on failure to comply with national regulations
on the entry or residence of aliens. In this case, the order
cannot be enforced by a Member State unless the person is unlawfully
present within its territory.

Article 4

This article requires a Member State intending to carry out
an expulsion order to ascertain that it remains enforceable.

It also requires a Member State intending to give effect to
expulsion first to consider the situation of the person concerned,
as provided by the relevant international instruments and, where
appropriate, by its national legislation.

Article 5

This article requires compliance with the principle that foreign
nationals must have a remedy available against the order issued
by the Member State intending to expel them. Such a remedy takes
the form laid down in that State's legislation.

The article stipulates the procedure to be followed, according
to whether the remedy is suspensive in effect or otherwise.

Article 6

This article makes provision for protection of personal data
and data security by reference to existing rules on the subject,
i.e. Directive 95/46/EC of 24 October 1995 concerning
data protection.

Article 7

This article makes provision for transposal into national
law of the measures required for implementation of the Directive
and in particular the time limit for doing so.

It requires Member States to inform the Commission of such
measures.

Draft initiative by the
French Republic for the adoption of a

COUNCIL DIRECTIVE

on mutual recognition of
decisions concerning expulsion of third-country nationals

THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty establishing the European Community,
and in particular Article 63(3) thereof,

Having regard to the initiative by the French Republic,

Having regard to the Opinion of the European Parliament,

Whereas:

(3) Article 63(3) of the Treaty establishing the European
Community stipulates that the Council is to adopt measures on
immigration policy within areas comprising conditions of entry
and residence as well as illegal immigration and illegal residence.

(4) Meeting in Tampere on 15 and 16 October 1999,
the European Council reaffirmed its resolve to create an area
of freedom, security and justice. For that purpose, a common
European policy on asylum and migration should aim at both fair
treatment of third-country nationals and better management of
migration flows.

(5) The need to ensure greater effectiveness in enforcing
expulsion orders and better cooperation between Member States
entails mutual recognition of expulsion decisions.

(6) Orders for the expulsion of individuals have to be adopted
in accordance with fundamental rights, as safeguarded by the
European Convention for the Protection of Human Rights and Fundamental
Freedoms of 4 November 1950, in particular Articles 3
and 8 thereof, and the Geneva Convention relating to the Status
of Refugees of 28 July 1951 and as they result from
the constitutional principles common to the Member States.

(7) In accordance with the principles of subsidiarity and
proportionality, as set out in Article 5 of the Treaty,
the objective of the proposed action, namely cooperation between
Member States on expulsion of aliens, cannot be sufficiently
achieved by the Member States and can therefore, by reason of
the effects of the action, be better achieved by the Community.
This Directive is confined to the minimum required in order to
achieve that objective and does not go beyond what is necessary
to that end,

HAS ADOPTED THIS DIRECTIVE:

Article 1

The purpose of this Directive is to make possible the enforcement
of an expulsion order issued by an administrative authority in
one Member State, hereinafter referred to as the "issuing
State", against a third-country national present within
the territory of another Member State, hereinafter referred to
as the "enforcing State". The third-country national
shall be expelled as laid down by this Directive and subject
to Article 4.

Article 2

For the purposes of this Directive, "third-country national"
shall mean anyone above the age of majority who is not a national
of any of the Member States of the European Union.

Article 3

A third-country national as referred to in Article 1
shall be:

(a) in the case of an expulsion order based on a threat to
public policy or public security or to national security:

- one who has been sentenced by the issuing State to a non-suspended
penalty involving deprivation of liberty of at least one year;

- one in respect of whom there are serious grounds for believing
that he has committed serious criminal offences or in respect
of whom there is clear evidence of an intention to commit such
offences within the territory of a Member State.

Possession of a residence permit shall not prevent the carrying
out of an enforcement order issued under this subparagraph. That
order must be:

- based on a serious present threat;

- consistent with the European Convention for the Protection
of Human Rights and Fundamental Freedoms of 4 November 1950;

(b) one who has had imposed on him an expulsion order based
on failure to comply with national regulations on the entry or
residence of aliens.

In the cases referred to in both (a) and (b) above, the order
must not have been rescinded or suspended.

Article 4

If the enforcing State has no information as to the continued
enforceability of the expulsion order, it shall ascertain from
the issuing State that the order remains enforceable.

The enforcing State shall first consider the situation of
the person concerned under the relevant international instruments
and under national rules applicable.

Article 5

The third-country national concerned must have a remedy available
against the decision taken by the enforcing State, as laid down
by that State's legislation.

Where, under the enforcing State's legislation, such remedy
is not suspensive in effect, that State shall carry out the order
and inform the issuing State accordingly.

Where, under the enforcing State's legislation, such remedy
is suspensive in effect, the order shall not be carried out by
that State until all available remedies have been exhausted and
the issuing State's order upheld. The enforcing State shall inform
the issuing State of the enforcement of the order.

Article 6

Protection of personal data and data security shall be ensured
in accordance with national legislation adopted pursuant to Directive 95/46/EC
of 24 October 1995 on the protection of individuals
with regard to the processing of person data and on the free
movement of such data.

Article 7

Member States shall bring into force the measures necessary
to comply with this Directive by [ ]. They shall forthwith
inform the Commission thereof.